[G.R. No. 147188.
September 14, 2004]
COMMISSIONER OF INTERNAL REVENUE, petitioner, vs. THE ESTATE OF
BENIGNO P. TODA, JR., Represented by Special Co-administrators Lorna
Kapunan and Mario Luza Bautista, respondents.
DECISION
DAVIDE, JR., C.J.:
This Court is called upon to determine in this case whether the tax planning scheme
adopted by a corporation constitutes tax evasion that would justify an assessment of
deficiency income tax.
The petitioner seeks the reversal of the Decision[1] of the Court of Appeals of 31
January 2001 in CA-G.R. SP No. 57799 affirming the 3 January 2000 Decision[2] of
the Court of Tax Appeals (CTA) in C.T.A. Case No. 5328,[3] which held that the
respondent Estate of Benigno P. Toda, Jr. is not liable for the deficiency income tax of
Cibeles Insurance Corporation (CIC) in the amount of P79,099,999.22 for the year
1989, and ordered the cancellation and setting aside of the assessment issued by
Commissioner of Internal Revenue Liwayway Vinzons-Chato on 9 January 1995.
The case at bar stemmed from a Notice of Assessment sent to CIC by the
Commissioner of Internal Revenue for deficiency income tax arising from an alleged
simulated sale of a 16-storey commercial building known as Cibeles Building, situated
on two parcels of land on Ayala Avenue, Makati City.
On 2 March 1989, CIC authorized Benigno P. Toda, Jr., President and owner of 99.991%
of its issued and outstanding capital stock, to sell the Cibeles Building and the two
parcels of land on which the building stands for an amount of not less than P90
million.[4]
1
On 30 August 1989, Toda purportedly sold the property for P100 million to Rafael A.
Altonaga, who, in turn, sold the same property on the same day to Royal Match Inc.
(RMI) for P200 million. These two transactions were evidenced by Deeds of Absolute
Sale notarized on the same day by the same notary public.[5]
For the sale of the property to RMI, Altonaga paid capital gains tax in the amount of
P10 million.[6]
On 16 April 1990, CIC filed its corporate annual income tax return[7] for the year
1989, declaring, among other things, its gain from the sale of real property in the
amount of P75,728.021. After crediting withholding taxes of P254,497.00, it paid
P26,341,207[8] for its net taxable income of P75,987,725.
On 12 July 1990, Toda sold his entire shares of stocks in CIC to Le Hun T. Choa for
P12.5 million, as evidenced by a Deed of Sale of Shares of Stocks.[9] Three and a half
years later, or on 16 January 1994, Toda died.
On 29 March 1994, the Bureau of Internal Revenue (BIR) sent an assessment
notice[10] and demand letter to the CIC for deficiency income tax for the year 1989 in
the amount of P79,099,999.22.
The new CIC asked for a reconsideration, asserting that the assessment should be
directed against the old CIC, and not against the new CIC, which is owned by an
entirely different set of stockholders; moreover, Toda had undertaken to hold the buyer
of his stockholdings and the CIC free from all tax liabilities for the fiscal years
1987-1989.[11]
On 27 January 1995, the Estate of Benigno P. Toda, Jr., represented by special
co-administrators Lorna Kapunan and Mario Luza Bautista, received a Notice of
Assessment[12] dated 9 January 1995 from the Commissioner of Internal Revenue for
deficiency income tax for the year 1989 in the amount of P79,099,999.22, computed
as follows: Less: Payment already made

Income Tax 1989 1. Per return P26,595,704.00

Net Income per return P75,987,725.00 2. Thru Capital Gains

Add: Additional gain on sale Tax made by R.A.

of real property taxable under Altonaga 10,000,000.00 36,595,704.00

ordinary corporate income Balance of tax due P 24,999,999.75

but were substituted with Add: 50% Surcharge 12,499,999.88

individual capital gains 25% Surcharge 6,249,999.94

(P200M 100M) 100,000,000.00 Total P 43,749,999.57

Total Net Taxable Income P175,987,725.00 Add: Interest 20% from

per investigation 4/16/90-4/30/94 (.808) 35,349,999.65

Tax Due thereof at 35% P 61,595,703.75 TOTAL AMT. DUE & COLLECTIBLE P 79,099,999.22

2
============
The Estate thereafter filed a letter of protest.[13]
In the letter dated 19 October 1995,[14] the Commissioner dismissed the protest,
stating that a fraudulent scheme was deliberately perpetuated by the CIC wholly
owned and controlled by Toda by covering up the additional gain of P100 million,
which resulted in the change in the income structure of the proceeds of the sale of the
two parcels of land and the building thereon to an individual capital gains, thus
evading the higher corporate income tax rate of 35%.
On 15 February 1996, the Estate filed a petition for review[15] with the CTA alleging
that the Commissioner erred in holding the Estate liable for income tax deficiency;
that the inference of fraud of the sale of the properties is unreasonable and
unsupported; and that the right of the Commissioner to assess CIC had already
prescribed.
In his Answer[16] and Amended Answer,[17] the Commissioner argued that the two
transactions actually constituted a single sale of the property by CIC to RMI, and that
Altonaga was neither the buyer of the property from CIC nor the seller of the same
property to RMI. The additional gain of P100 million (the difference between the
second simulated sale for P200 million and the first simulated sale for P100 million)
realized by CIC was taxed at the rate of only 5% purportedly as capital gains tax of
Altonaga, instead of at the rate of 35% as corporate income tax of CIC. The income
tax return filed by CIC for 1989 with intent to evade payment of the tax was thus false
or fraudulent. Since such falsity or fraud was discovered by the BIR only on 8 March
1991, the assessment issued on 9 January 1995 was well within the prescriptive period
prescribed by Section 223 (a) of the National Internal Revenue Code of 1986, which
provides that tax may be assessed within ten years from the discovery of the falsity or
fraud. With the sale being tainted with fraud, the separate corporate personality of CIC
should be disregarded. Toda, being the registered owner of the 99.991% shares of
stock of CIC and the beneficial owner of the remaining 0.009% shares registered in
the name of the individual directors of CIC, should be held liable for the deficiency
income tax, especially because the gains realized from the sale were withdrawn by
him as cash advances or paid to him as cash dividends. Since he is already dead, his
estate shall answer for his liability.
3
In its decision[18] of 3 January 2000, the CTA held that the Commissioner failed to
prove that CIC committed fraud to deprive the government of the taxes due it. It ruled
that even assuming that a pre-conceived scheme was adopted by CIC, the same
constituted mere tax avoidance, and not tax evasion. There being no proof of
fraudulent transaction, the applicable period for the BIR to assess CIC is that
prescribed in Section 203 of the NIRC of 1986, which is three years after the last day
prescribed by law for the filing of the return. Thus, the governments right to assess
CIC prescribed on 15 April 1993. The assessment issued on 9 January 1995 was,
therefore, no longer valid. The CTA also ruled that the mere ownership by Toda of
99.991% of the capital stock of CIC was not in itself sufficient ground for piercing the
separate corporate personality of CIC. Hence, the CTA declared that the Estate is not
liable for deficiency income tax of P79,099,999.22 and, accordingly, cancelled and set
aside the assessment issued by the Commissioner on 9 January 1995.
In its motion for reconsideration,[19] the Commissioner insisted that the sale of the
property owned by CIC was the result of the connivance between Toda and Altonaga.
She further alleged that the latter was a representative, dummy, and a close business
associate of the former, having held his office in a property owned by CIC and derived
his salary from a foreign corporation (Aerobin, Inc.) duly owned by Toda for
representation services rendered. The CTA denied[20] the motion for reconsideration,
prompting the Commissioner to file a petition for review[21] with the Court of
Appeals.
In its challenged Decision of 31 January 2001, the Court of Appeals affirmed the
decision of the CTA, reasoning that the CTA, being more advantageously situated and
having the necessary expertise in matters of taxation, is better situated to determine
the correctness, propriety, and legality of the income tax assessments assailed by the
Toda Estate.[22]
Unsatisfied with the decision of the Court of Appeals, the Commissioner filed the
present petition invoking the following grounds:
I. THE COURT OF APPEALS ERRED IN HOLDING THAT RESPONDENT
COMMITTED NO FRAUD WITH INTENT TO EVADE THE TAX ON THE SALE
OF THE PROPERTIES OF CIBELES INSURANCE CORPORATION.

2. Has the period for assessment of deficiency income tax for the year 1989 prescribed?
and
II. THE COURT OF APPEALS ERRED IN NOT DISREGARDING THE
SEPARATE CORPORATE PERSONALITY OF CIBELES INSURANCE
CORPORATION.
3. Can respondent Estate be held liable for the deficiency income tax of CIC for the
year 1989, if any?

III. THE COURT OF APPEALS ERRED IN HOLDING THAT THE RIGHT OF

PETITIONER TO ASSESS RESPONDENT FOR DEFICIENCY INCOME TAX FOR
THE YEAR 1989 HAD PRESCRIBED. We shall discuss these questions in seriatim.

The Commissioner reiterates her arguments in her previous pleadings and insists that Is this a case of tax evasion
the sale by CIC of the Cibeles property was in connivance with its dummy Rafael
Altonaga, who was financially incapable of purchasing it. She further points out that
the documents themselves prove the fact of fraud in that (1) the two sales were done or tax avoidance?
simultaneously on the same date, 30 August 1989; (2) the Deed of Absolute Sale
between Altonaga and RMI was notarized ahead of the alleged sale between CIC and
Altonaga, with the former registered in the Notarial Register of Jocelyn H. Arreza
Tax avoidance and tax evasion are the two most common ways used by taxpayers in
Pabelana as Doc. 91, Page 20, Book I, Series of 1989; and the latter, as Doc. No. 92,
escaping from taxation. Tax avoidance is the tax saving device within the means
Page 20, Book I, Series of 1989, of the same Notary Public; (3) as early as 4 May
sanctioned by law. This method should be used by the taxpayer in good faith and at
1989, CIC received P40 million from RMI, and not from Altonaga. The said amount
arms length. Tax evasion, on the other hand, is a scheme used outside of those lawful
was debited by RMI in its trial balance as of 30 June 1989 as investment in Cibeles
means and when availed of, it usually subjects the taxpayer to further or additional
Building. The substantial portion of P40 million was withdrawn by Toda through the
civil or criminal liabilities.[23]
declaration of cash dividends to all its stockholders.

Tax evasion connotes the integration of three factors: (1) the end to be achieved, i.e.,
For its part, respondent Estate asserts that the Commissioner failed to present the
the payment of less than that known by the taxpayer to be legally due, or the
income tax return of Altonaga to prove that the latter is financially incapable of
non-payment of tax when it is shown that a tax is due; (2) an accompanying state of
purchasing the Cibeles property.
mind which is described as being evil, in bad faith, willfull,or deliberate and not
accidental; and (3) a course of action or failure of action which is unlawful.[24]

To resolve the grounds raised by the Commissioner, the following questions are
pertinent:
1. Is this a case of tax evasion or tax avoidance?
All these factors are present in the instant case. It is significant to note that as early as
4 May 1989, prior to the purported sale of the Cibeles property by CIC to Altonaga on
30 August 1989, CIC received P40 million from RMI,[25] and not from Altonaga.
That P40 million was debited by RMI and reflected in its trial balance[26] as other inv.
Cibeles Bldg. Also, as of 31 July 1989, another P40 million was debited and reflected

4
in RMIs trial balance as other inv. Cibeles Bldg. This would show that the real buyer
of the properties was RMI, and not the intermediary Altonaga.
The investigation conducted by the BIR disclosed that Altonaga was a close business
associate and one of the many trusted corporate executives of Toda. This information
was revealed by Mr. Boy Prieto, the assistant accountant of CIC and an old timer in
the company. [27] But Mr. Prieto did not testify on this matter, hence, that information
remains to be hearsay and is thus inadmissible in evidence. It was not verified either,
since the letter-request for investigation of Altonaga was unserved,[28] Altonaga
having left for the United States of America in January 1990. Nevertheless, that
Altonaga was a mere conduit finds support in the admission of respondent Estate that
the sale to him was part of the tax planning scheme of CIC. That admission is borne
by the records. In its Memorandum, respondent Estate declared:
Petitioner, however, claims there was a change of structure of the proceeds of sale.
Admitted one hundred percent. But isnt this precisely the definition of tax planning?
Change the structure of the funds and pay a lower tax. Precisely, Sec. 40 (2) of the Tax
Code exists, allowing tax free transfers of property for stock, changing the structure of
the property and the tax to be paid. As long as it is done legally, changing the structure
of a transaction to achieve a lower tax is not against the law. It is absolutely allowed.
Tax planning is by definition to reduce, if not eliminate altogether, a tax. Surely
petitioner [sic] cannot be faulted for wanting to reduce the tax from 35% to 5%.[29]
[Underscoring supplied].
The scheme resorted to by CIC in making it appear that there were two sales of the
subject properties, i.e., from CIC to Altonaga, and then from Altonaga to RMI cannot
be considered a legitimate tax planning. Such scheme is tainted with fraud.
Fraud in its general sense, is deemed to comprise anything calculated to deceive,
including all acts, omissions, and concealment involving a breach of legal or equitable
duty, trust or confidence justly reposed, resulting in the damage to another, or by
which an undue and unconscionable advantage is taken of another.[30]
5
Here, it is obvious that the objective of the sale to Altonaga was to reduce the amount
of tax to be paid especially that the transfer from him to RMI would then subject the
income to only 5% individual capital gains tax, and not the 35% corporate income tax.
Altonagas sole purpose of acquiring and transferring title of the subject properties on
the same day was to create a tax shelter. Altonaga never controlled the property and
did not enjoy the normal benefits and burdens of ownership. The sale to him was
merely a tax ploy, a sham, and without business purpose and economic substance.
Doubtless, the execution of the two sales was calculated to mislead the BIR with the
end in view of reducing the consequent income tax liability.
In a nutshell, the intermediary transaction, i.e., the sale of Altonaga, which was
prompted more on the mitigation of tax liabilities than for legitimate business
purposes constitutes one of tax evasion.[31]
Generally, a sale or exchange of assets will have an income tax incidence only when it
is consummated.[32] The incidence of taxation depends upon the substance of a
transaction. The tax consequences arising from gains from a sale of property are not
finally to be determined solely by the means employed to transfer legal title. Rather,
the transaction must be viewed as a whole, and each step from the commencement of
negotiations to the consummation of the sale is relevant. A sale by one person cannot
be transformed for tax purposes into a sale by another by using the latter as a conduit
through which to pass title. To permit the true nature of the transaction to be disguised
by mere formalisms, which exist solely to alter tax liabilities, would seriously impair
the effective administration of the tax policies of Congress.[33]
To allow a taxpayer to deny tax liability on the ground that the sale was made through
another and distinct entity when it is proved that the latter was merely a conduit is to
sanction a circumvention of our tax laws. Hence, the sale to Altonaga should be
disregarded for income tax purposes.[34] The two sale transactions should be treated
as a single direct sale by CIC to RMI.
Accordingly, the tax liability of CIC is governed by then Section 24 of the NIRC of
1986, as amended (now 27 (A) of the Tax Reform Act of 1997), which stated as
follows:

Sec. 24. Rates of tax on corporations. (a) Tax on domestic corporations.- A tax is
hereby imposed upon the taxable net income received during each taxable year from
all sources by every corporation organized in, or existing under the laws of the
Philippines, and partnerships, no matter how created or organized but not including
general professional partnerships, in accordance with the following:
Twenty-five percent upon the amount by which the taxable net income does not
exceed one hundred thousand pesos; and
Thirty-five percent upon the amount by which the taxable net income exceeds one
hundred thousand pesos.
CIC is therefore liable to pay a 35% corporate tax for its taxable net income in 1989.
The 5% individual capital gains tax provided for in Section 34 (h) of the NIRC of
1986[35] (now 6% under Section 24 (D) (1) of the Tax Reform Act of 1997) is
inapplicable. Hence, the assessment for the deficiency income tax issued by the BIR
must be upheld.
Has the period of
assessment prescribed?
No. Section 269 of the NIRC of 1986 (now Section 222 of the Tax Reform Act of
1997) read:
Sec. 269. Exceptions as to period of limitation of assessment and collection of
taxes.-(a) In the case of a false or fraudulent return with intent to evade tax or of
failure to file a return, the tax may be assessed, or a proceeding in court after the
collection of such tax may be begun without assessment, at any time within ten years
after the discovery of the falsity, fraud or omission: Provided, That in a fraud
6
assessment which has become final and executory, the fact of fraud shall be judicially
taken cognizance of in the civil or criminal action for collection thereof .
Put differently, in cases of (1) fraudulent returns; (2) false returns with intent to evade
tax; and (3) failure to file a return, the period within which to assess tax is ten years
from discovery of the fraud, falsification or omission, as the case may be.
It is true that in a query dated 24 August 1989, Altonaga, through his counsel, asked
the Opinion of the BIR on the tax consequence of the two sale transactions.[36] Thus,
the BIR was amply informed of the transactions even prior to the execution of the
necessary documents to effect the transfer. Subsequently, the two sales were openly
made with the execution of public documents and the declaration of taxes for 1989.
However, these circumstances do not negate the existence of fraud. As earlier
discussed those two transactions were tainted with fraud. And even assuming
arguendo that there was no fraud, we find that the income tax return filed by CIC for
the year 1989 was false. It did not reflect the true or actual amount gained from the
sale of the Cibeles property. Obviously, such was done with intent to evade or reduce
tax liability.
As stated above, the prescriptive period to assess the correct taxes in case of false
returns is ten years from the discovery of the falsity. The false return was filed on 15
April 1990, and the falsity thereof was claimed to have been discovered only on 8
March 1991.[37] The assessment for the 1989 deficiency income tax of CIC was
issued on 9 January 1995. Clearly, the issuance of the correct assessment for
deficiency income tax was well within the prescriptive period.
Is respondent Estate liable
for the 1989 deficiency
income tax of Cibeles
Insurance Corporation?
A corporation has a juridical personality distinct and separate from the persons owning
or composing it. Thus, the owners or stockholders of a corporation may not generally
be made to answer for the liabilities of a corporation and vice versa. There are,
however, certain instances in which personal liability may arise. It has been held in a
number of cases that personal liability of a corporate director, trustee, or officer along,
albeit not necessarily, with the corporation may validly attach when:
1. He assents to the (a) patently unlawful act of the corporation, (b) bad faith or gross
negligence in directing its affairs, or (c) conflict of interest, resulting in damages to the
corporation, its stockholders, or other persons;
2. He consents to the issuance of watered down stocks or, having knowledge thereof,
does not forthwith file with the corporate secretary his written objection thereto;
rules and regulations. SELLER undertakes and agrees to hold the BUYER and Cibeles
free from any and all income tax liabilities of Cibeles for the fiscal years 1987, 1988
and 1989.[39] [Underscoring Supplied].
When the late Toda undertook and agreed to hold the BUYER and Cibeles free from
any all income tax liabilities of Cibeles for the fiscal years 1987, 1988, and 1989, he
thereby voluntarily held himself personally liable therefor. Respondent estate cannot,
therefore, deny liability for CICs deficiency income tax for the year 1989 by invoking
the separate corporate personality of CIC, since its obligation arose from Todas
contractual undertaking, as contained in the Deed of Sale of Shares of Stock.
WHEREFORE, in view of all the foregoing, the petition is hereby GRANTED. The
decision of the Court of Appeals of 31 January 2001 in CA-G.R. SP No. 57799 is
REVERSED and SET ASIDE, and another one is hereby rendered ordering
respondent Estate of Benigno P. Toda Jr. to pay P79,099,999.22 as deficiency income
tax of Cibeles Insurance Corporation for the year 1989, plus legal interest from 1 May
1994 until the amount is fully paid.

3. He agrees to hold himself personally and solidarily liable with the corporation; or
Costs against respondent.

4. He is made, by specific provision of law, to personally answer for his corporate

SO ORDERED.
action.[38]

Quisumbing, Ynares-Santiago, Carpio, and Azcuna, JJ., concur.

It is worth noting that when the late Toda sold his shares of stock to Le Hun T. Choa,
he knowingly and voluntarily held himself personally liable for all the tax liabilities of
CIC and the buyer for the years 1987, 1988, and 1989. Paragraph g of the Deed of
Sale of Shares of Stocks specifically provides:

g. Except for transactions occurring in the ordinary course of business, Cibeles has no
liabilities or obligations, contingent or otherwise, for taxes, sums of money or
insurance claims other than those reported in its audited financial statement as of
December 31, 1989, attached hereto as Annex B and made a part hereof. The business
of Cibeles has at all times been conducted in full compliance with all applicable laws,